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CITY OF TSHWANE

Disaster Management

Plan Updated Level 1

Disaster Management Centre 2011

| Updated by | Disaster Management Officers | OC Tshitannye | KZ Khotlele | KJ Matebane |

TJ Tshifaro | SV Mnguni |

ACCRONYMS

CBO Community based organisation

CoT City of Tshwane

CoT DRMF City of Tshwane Disaster Risk Management Framework

DMA Disaster Management Act No. 57 of 2002.

DMIS Disaster Management Information System

DOC Disaster Operations Centre

DRA Disaster Risk Assessment

DRR Disaster Risk Reduction

DRMAF Disaster Risk Management Advisory Forum

DRMP Disaster Risk Management Plan

EIA Environmental Impact Assessment

FOG Field Operations Guide

FPA Fire Protection Association

GIS Geographical Information Systems

GM General Manager

GP PDMC Gauteng Province Provincial Disaster Management Centre

GPDMF Gauteng Province Provincial Disaster Management Framework

GPS Geographical Positioning System

IDP Integrated Development Plan

IRCS International Red Cross Society

JOC Joint Operations Centre

KPA Key Performance Area

MDG Millennium Development Goals

MDMC Municipal Disaster Management Centre

MFMA Municipal Financial Management Act No. 56 of 2003

MMC Member of the Mayoral Committee

NDMC National Disaster Management Centre

NDMF National Disaster Management Framework

NGO Non-governmental organisation

PDMC Provincial Disaster Management Centre

PDMF Provincial Disaster Risk Management Framework

PFMA Public Financial Management Act No. 1 of 1999

SED Strategic Executive Director

SOP Standard Operating Procedure

VOC Venue Operations Centre

DEFINITIONS

Disaster is a progressive or sudden widespread or localized, natural or human-

caused occurrence which causes or threatens to cause death or injury, damage

to property, infrastructure or environment, disruption of life of a community and

its magnitude exceeds the ability of those affected to cope using only their own

resources.

Disaster management is a continuous and integrated multisectoral and

multidisciplinary process of planning and implementation of measures aimed at

disaster prevention, mitigation, preparedness, response, recovery and

rehabilitation.

Risk is a probability of a hazard occurring or threatening to occur

Prevention means activities to provide outright avoidance of the adverse impact

of hazards and means to minimize related environmental, technological and

biological disasters.

Mitigation means structural and non-structural measures undertaken to limit the

adverse impact of natural hazards, environmental degradation and technological

hazards.

Preparedness means activities and measures taken in advance to ensure

effective response to the impact of hazards, including the issuance of timely and

effective early warnings and the temporary evacuation of people and property

from threatened locations.

Response means measures taken during or immediately after an incident or a

disaster in order to bring relief to affected communities or individuals

Recovery means efforts, including development aimed at creating a situation

where-

(a) Normality in conditions caused by a disaster is restored;

(b) The effects of a disaster are mitigated; or

(c) Circumstances are created that will reduce the risk of a similar

disaster occurring

Capacity is a combination of all the strengths and resources available within a

community, society or organization that can reduce the level of risk, or the

effects of a disaster.

Hazard is a potentially damaging physical event, phenomenon or human activity

that may cause the loss of life or injury, property damage, social and economic

disruption or environmental degradation.

Disaster risk reduction is the conceptual framework of elements considered

with the possibilities to minimize vulnerabilities and disaster risks throughout a

society, to avoid (prevention) or to limit (mitigation and preparedness) the

adverse impacts of hazards, within the broad context of sustainable

development.

Environmental Impact Assessments are studies undertaken in order to assess

the effect on a specified environment of the introduction of any new factor, which

may upset the current ecological balance.

Environmental degradation is the reduction of the capacity of the environment

to meet social and ecological objectives, and needs.

Geographic Information System is an analysis that combines relational

databases with spatial interpretation and outputs often in form of maps. A more

elaborate definition is that of computer programmes for capturing, storing,

checking, integrating, analysing and displaying data about the earth that is

spatially referenced.

CONTENTS Executive Summary ................................................................................................... 8

1. Custodian Of The Plan ......................................................................................... 10

3. Legislative Mandate ............................................................................................. 12

4. Purpose ................................................................................................................ 12

5. City Of Tshwane Overview ................................................................................... 13

6. Disaster Management Planning Overview ..................................................... 14

6.1 Foundational Institutional Arrangements ....................................................... 15

6.1.1 Disaster Risk Management Policy Framework ........................................... 16

6.1.2 Emergency Services Department Top Management Committee ............... 18

6.1.3 Disaster Risk Management Advisory Forum .............................................. 19

6.1.4 Ngo Forum ................................................................................................. 22

6.1.5. Other Sub-Fora .............................................................................................. 25

6.1.8. Municipal Disaster Management Centre (Mdmc) ........................................... 27

6.1.9. Sub-Structures Of The Mdmc .................................................................... 32

6.2. Divisional Disaster Risk Management Focal Points ....................................... 33

7. The Disaster Risk Management Planning Framework ……………………………………………..60

7.1 Risk Reduction Planning ............................................................................... 60

7.2 Contingency Planning .................................................................................... 61

8. Disaster Risk Assessment For The Cot ......................................................... 65

8.2 Macro Vulnerability Assessment ........................................................................ 70

9. The Disaster Risk Profile Of The Cot ............................................................. 77

10. Formal Consultative Mechanism For DRR Projects ...................................... 78 10.1 IDP Projects Contributing To Vulnerability And Hazard Reduction ................ 79

11. Disaster Risk Management Planning Priorities For The Cot .......................... 79

12. Incentive System For The Promotion Of DRM In The Cot .................................. 81

13. Disaster Risk Management Information System ............................................ 82

14. Emergency Communication System .............................................................. 83

15. Areas For Focussed Disaster Risk Assessments .......................................... 86

16. Implementation Strategy For The DRM Plan ................................................. 86

EXECUTIVE SUMMARY Disaster risk management has become the major challenge the entire world is faced

with currently owing to the ever growing population, climate change, and the ever

changing environment in general. Natural and man-made disasters result in

economic as well as environmental losses which places a need for systematic

approach to management of risks.

The Constitution of the Republic of South Africa (Act 108 of 1996) places a legal

obligation on the Government of South Africa to ensure the health (personal and

environment) and safety of its citizens. In terms of section 41(1)(b) of the

Constitution, all spheres of Government are required to “secure the well-being of the

people of the Republic”. Section 152(1)(d) also requires that local government

“ensure a safe and healthy environment”. In the light of the above, and the

established understanding of disaster management, the primary responsibility for

disaster risk management in South Africa rests with Government.

Section 26(g) of the Municipal Systems Act 32 of 2000 as well as sections 52 and 53

of the Disaster Management Act 57 of 2002 compels each municipal entity to

develop a disaster risk management plan as part of and an integrated part of their

Integrated Development Plans. This plan establishes the arrangements for disaster

risk management within the City of Tshwane (CoT) and has been prepared in

accordance with the requirements of the Disaster Management Act, 57 of 2002 (the

Act) and section 26(g) of the Municipal Systems Act, 2000.

A Level 1 Disaster Risk Management Plan applies to national or provincial organs of

state or municipal entities that have not previously developed a coherent Disaster

Risk Management Plan. It focuses primarily on establishing foundation institutional

arrangements for DRM, putting in place contingency plans for responding to known

priority risks as identified in the initial stage of the DRA, identifying key governmental

and other stakeholders, and developing the capability to generate a level 2 plan.

The purpose of the CoT Disaster Risk Management Plan (DRMP) is to document the

institutional arrangements for disaster risk management planning which includes the

assignment of primary and secondary responsibilities for priority disaster risks posing

a threat in the CoT. It further provides the broad framework within which the disaster

risk management planning requirements of the Act will be implemented by the

departments and other entities included in the organisational structure of the CoT. It

establishes the operational procedures for disaster risk reduction planning as well as

the emergency procedures to be implemented in the event of a disaster occurring or

threatening to occur in council’s area. It aims to facilitate an integrated and

coordinated approach to disaster risk management in the municipality which will

ensure that the CoT achieves its vision for disaster risk management which is to

build a resilient people in the CoT who are alert, informed and self-reliant by

establishing risk reduction and resilience building as core principles, and developing

adequate capabilities for readiness; and effective and rapid, response and recovery.

Lastly the plan established contingency measures in the form of specific and generic

contingency plans in line with the indicative risk profile of the municipality and to

ensure a coordinated approach to disaster response.

This plan aims to familiarise key role-players in the CoT with the mainstream

concepts of disaster risk reduction. It provides a brief background study of the CoT in

line with its current Integrated Development Plan (IDP). The CoT disaster risk

management plan contains a macro disaster risk assessment based on field

research, observation, primary- and secondary data sources. The CoT DRMP has as

far as possible been imbedded in the current reality of the municipality. The macro

disaster risk assessment provides the foundation towards risk reduction planning

based on the identified and prioritised disaster risks and vulnerabilities of the CoT.

This DRMP for the CoT furthermore provides the municipality with a guiding

framework for future disaster risk management planning by the municipality as a

whole as required by the Disaster Management Act 57 of 2002 (DMA), the National

as well as CoT Disaster Management Framework, and the Municipal Systems Act 32

of 2000. This plan also gives guidance in relation to the declaration of a local state of

disaster, disaster classification and the institutional arrangement necessary for the

successful implementation of the Act.

1. CUSTODIAN OF THE PLAN

The Head of the CoT Municipal Disaster Management Centre (CoT MDMC) is the

custodian of the disaster risk management plan for the CoT and is responsible to

ensure the regular review and updating of the plan.

The Head of the Centre will ensure that copies of the completed plan as well as any

amendments to the plan are submitted to:

• the Disaster Management Centre of the Gauteng Province;

• the National Disaster Management Centre (NDMC);

• the CoT ward disaster management structures; and

• each of the municipalities neighbouring the CoT.

In terms of section 52 of the Act each municipal organ of state and any other

municipal entity operating within council’s organisational structure is responsible for

the development and maintenance of a disaster risk management plan for its

functional area. Departmental plans and plans of other entities are an integral part of

council’s comprehensive disaster management plan and therefore the head of each

department and of each entity must ensure that copies of the plan and any

amendments to the plan are submitted to the CoT MDMC.

2. INTRODUCTION

In terms of the Disaster Management Act, 57 of 2002, each organ of state must have

the disaster management plan and review and update it regularly. Planning for

disasters leads to organisational preparedness and readiness in anticipation of an

emergency or disasters. The first version of Disaster Risk Management Plan for the

CoT has been structured in such a way as to address the requirements of a Level 1

Disaster Management Plan as per the guidance of the National Disaster

Management Framework (NDMF). This document aims to be a practical and

implementable plan which will ensure an integrated approach to disaster risk

management for the CoT.

Throughout this document, reference has been made to the Disaster Management

Act, NDMF, CoT DMF and localised incidents policy. It is therefore imperative to

read this plan in conjunction with these documents. Each section of this plan

addresses the multi-disciplinary, multi-sectoral and coordinated approach to disaster

management as stipulated in the DMA.

The workable objective criteria have been used to prioritise and plan for CoT’s ten

identified risks, informed by the results of risk assessment conducted.

3. LEGISLATIVE MANDATE

In terms of the constitution of the Republic of South Africa, Act 108 of 1996, section

41(1)(b), it is the responsibility of all spheres of government to secure safety and

wellbeing of the people of the Republic. The constitution also places the

responsibility of securing the safety and health of the environment on all spheres of

government. It is therefore imperative to realise that disaster management is the

primary responsibility of government as well, because the DMA puts emphasis on

healthy and safe communities and environment.

Section 26(g) of the Municipal Systems Act 32 of 2000 as well as sections 52 and 53

of the Disaster Management Act 57 of 2002 compels each municipal entity to

develop a disaster risk management plan as part of and an integrated part of their

Integrated Development Plans. This plan establishes the arrangements for disaster

risk management within the City of Tshwane (CoT) and has been prepared in

accordance with the requirements of the Disaster Management Act, 57 of 2002 (the

Act) and section 26(g) of the Municipal Systems Act, 2000.

Reference has also been made to the CoT Disaster Management Policy Framework

and the Disaster Management Localised Incident Policy.

4. PURPOSE

The purpose of this plan is to establish processes for a comprehensive disaster risk

assessment. It further seeks to identify and clarify the roles and responsibilities of the

internal and external stakeholders throughout the entire cycle of disaster

management, i.e.: pre-disaster, during disaster and post disaster phases. It again

identifies and establishes consultative mechanisms for specific priority risk reduction

projects aimed at promoting resilient communities within the city.

5. CITY OF TSHWANE OVERVIEW

The City of Tshwane Metropolitan Municipality was established on 5 December 2000

after the amalgamation of the following local authorities:

• The Greater Pretoria Metropolitan Council

• The City Council of Pretoria

• The Town Council of Centurion

• The Northern Pretoria Metropolitan Substructure

• The Hammanskraal Local Area Committee

• The Eastern Gauteng Services Council

• The Pienaarsrivier Transitional Representative Council

• The Crocodile River Transitional Council

• The Western Gauteng Services Council

• The Winterveld Transitional Representative Council

• The Temba Transitional Representative Council

• The Mabopane Transitional Representative Council

• The Ga-Rankuwa Transitional Representative Council

• The Eastern District Council

After the 2011 local elections, City of Tshwane officially merged with Metsweding

District Municipality, incorporating the areas such as Bronkhorspruit, Cullinan and

Reyton, making CoT the world’s third biggest municipality with an area of 6 368 km2

The CoT's land area increased from 2,198 square kilometres (849 sq mi) in 2010 to

6,368 square kilometres (2,459 sq mi) after the incorporation of Metsweding and a

population of just over 2.5 million.

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6. DISASTER MANAGEMENT PLANNING OVERVIEW

The National Disaster Management Policy Framework has simplified the disaster

management planning process into three progressive phases, being level 1, 2 and 3.

The table below summarises the levels of disaster management planning as well as

the expected critical outcomes as per the national policy framework requirements.

LEVEL OF

PLAN

CRITICAL OUTCOMES

I 1 Establish foundation institutional arrangements for disaster risk

management

2 Develop the capability to generate a Level Two Disaster Risk Management

Plan

3 Develop and implement contingency plans for known priority risks

4 Establish processes for comprehensive risk assessments

5 Identify and establish consultative mechanisms for specific priority risk

II reduction projects

6 Develop a supportive information management system

7 Develop emergency communication capabilities

III 8 Establish specific institutional arrangements for coordinating and aligning

plans

9 Establish mechanisms to ensure informed and on-going risk assessments

10 Institute mechanisms to ensure on-going relevancy of disaster risk

management policy frameworks and plans

However, this document will only focus on the level 1 disaster management plan.

The level 1 disaster management plan (this plan), according to the National Disaster

Management Policy Framework, focuses primarily on establishing foundation

institutional arrangements for disaster risk management, putting in place contingency

plans for responding to known priority threats as identified in the initial stages of the

disaster risk assessment. It further identifies key stakeholders and develops

capabilities to generate a level two disaster management plan.

6.1 FOUNDATIONAL INSTITUTIONAL ARRANGEMENTS

In terms of disaster management legislations (i.e. disaster management act 57 of

2002, national disaster management policy framework, Gauteng disaster

management policy framework and municipal disaster management policy

framework), the council of each metropolitan municipality must establish institutional

capacity for disaster risk management in its area for implementing disaster risk

management within the municipal sphere of government. Furthermore these

Source: Best Practice Handbook Series, NDMC (undated

arrangements must be consistent with national and provincial arrangements and

must provide the appropriate mechanisms to allow for the application of cooperative

governance to facilitate both intergovernmental and municipal interdepartmental

relations as well as community participation for the purpose of disaster risk

management. This is in line with the requirements of a Level 1 Disaster Risk

Management Plan as per section 3.1.1.2 of the National Disaster Management

Policy Framework.

6.1.1 Disaster Risk Management Policy Framework

The Act requires the development of one national disaster management framework,

a provincial disaster management framework for each province and disaster

management frameworks for all district and metropolitan municipalities. The national

disaster management framework is the legal instrument specified by the Act to

address such needs for consistency across multiple interest groups, by providing ‘a

coherent, transparent and inclusive policy on disaster management appropriate for

the Republic as a whole’ (section 7(1)). The national disaster management

framework also informs the subsequent development of provincial and municipal

disaster management frameworks and plans, which are required to guide action in all

spheres of government.

The CoT Disaster Risk Management Framework (DRMF) aims to provide CoT with a

holistic and integrated policy framework which underpins the implementation of the

Disaster Management Act 57 of 2002 at metropolitan level. This policy is in line with

the requirements of the National Disaster Risk Management Framework of 2005 as

well as the Gauteng Provincial Disaster Risk Management Framework. The CoT

DRMF is still under review and will soon be circulated for comments. The national

disaster management framework comprises four key performance areas (KPAs) and

three supportive enablers required to achieve the objectives set out in the KPAs. The

KPAs and enablers are informed by specified objectives and, as required by the Act,

key performance indicators (KPIs) to guide and monitor progress. In addition, each

KPA and enabler concludes with a list of guidelines that will be disseminated by the

NDMC to support the implementation of the framework in all three spheres of

government.

In all spheres of government, the disaster management framework is the guiding and

coordinating policy instrument for ensuring an integrated and uniform approach to

disaster risk management by all organs of state and other institutional role players.

This includes, among others, NGOs, the private sector and institutions of higher

learning. With specific reference to district municipalities, the disaster management

framework is the integrating instrument for consolidating the disaster risk

management plans of individual municipalities within the district.

Each disaster management centre in the respective sphere of government is

responsible for consultatively facilitating the development of the disaster

management framework in its area of jurisdiction, and subsequently amending it in

consultation with key stakeholders. Provincial and municipal disaster management

frameworks must be consistent with the national disaster management framework

and must establish foundation institutional arrangements for disaster risk

management, including formal consultative processes that provide for participative

planning.

This Plan must be read in conjunction with the CoT DRMF.

6.1.2 EMERGENCY SERVICES DEPARTMENT TOP MANAGEMENT COMMITTEE

Referral section in the CoT

DRMF:

4.1.1

The CoT DRMF indicates that the Management Committee of the CoT is used as the

managerial coordinating body for inter-departmental liaison and coordination. In

order for this plan to be implemented successfully it is imperative for the

Management Committee to adopt disaster risk management as a standing agenda

point of the meeting. This will ensure that disaster risk management is addressed on

a regular and on-going basis. Though the Management Committee, high-level

decision-making will inform the tasks of the different disaster risk management focal

points in the respective divisions and municipal entities.

Action Performance indicator

Time frame

Budget Responsible entity

Include disaster risk

management as a

standing agenda

point on the Top

Management

Committee agenda.

The

Management

Committee

accepts

disaster risk

management

On-going None HoC

as a standing

agenda point

and

discusses

related

issues on an

on-going

basis.

6.1.3 DISASTER RISK MANAGEMENT ADVISORY FORUM

Referral sections in the DMA 44

51


DRMF:

4.1.3

The Act calls for the active participation of all stakeholders, including the private

sector, NGOs, technical experts, communities, traditional leaders and volunteers, in

disaster risk management planning and operations. Specific arrangements must be

implemented to ensure the integration of stakeholder participation, to harness

technical advice and to adopt a holistic and organised approach to the

implementation of policy and legislation. In order for all relevant role-players in

disaster risk management in the municipal area to co-ordinate their actions on

matters relating to disaster risk management as prescribed in Section 4.1.3 of the

CoT DRMF, Section 44 of the Act, Council has established a Disaster Risk

Management Advisory Forum in 2004 as provided for in Section 51 of the Disaster

Management Act 57 of 2002. The Forum comprises of the relevant stakeholders and

role-players including all CoT departments, NGOs and CBOs; individuals or groups

with special technical expertise.

This forum carries the following responsibilities:

give advice and make recommendations on disaster-related issues and

disaster risk management

contribute to disaster risk management planning and co-ordination

establish joint standards of practice

implement response management systems

gather critical information about the municipality’s capacity to assist in

disasters and to access resources

Assist with public awareness, training and capacity building.


Time frame


The MDMC to

arrange a meeting

of the DRMAF and

invite all the

relevant role-

players as per the

relevant sections of

the DMA and CoT

A meeting of the

DRMAF is

arranged.

Quarterly Disaster

Management

Centre

DRMF.

The DRMAF to

establish

permanent

membership and

establish a terms of

reference.

All relevant role-

players who will

enjoy permanent

membership on

the DMAF are

recorded and a

term of reference

is developed and

adopted.

DMC

The DRMAF to

consider the

content of the CoT

DRMF and DRMP

and to provide input

and advice in this

regard.

Advice and input

from the DRMAF

has been noted

and incorporated

into the relevant

documents

where needed.

On-going None DMC

The DRMAF to

consider the

indicative disaster

risk profile of the

CoT and provide

input to the MDMC.

The indicative

risk profile of the

CoT is assessed

by the DRMAF

with written

advice and

comments to the

MDMC.

The DRMAF to

consider the

different sub-

committees to

function under the

DRMAF (in relation

to the indicative

disaster risk

profile).

Different

permanent and

ad hoc sub-

committees for

the DRMAF have

been

established.

The DRMAF to

meet at least twice

a year.

Two successful

meetings of the

DRMAF has

been arranged

and completed.

6.1.4 NGO FORUM


DRMF:

4.1.3.1

Template MDMC_2

The NGO Forum as a sub-committee of the CoT DRMF is responsible for the

development and alignment of their own terms of reference with this DRMP and the

CoT DRMF, and for the development of a social disaster relief contingency plan.

Such a plan must be developed according to Contingency Plan template as

contained in the CoT DRMF.

According to the Terms of Reference of the NGO Forum it is responsible for:

Relief resources mobilisation;

Assist in relief distribution;

Damage and needs assessment;

Hazard identification;

Assistance during response;

Coordination of relief efforts from various NGOs and CBOs;

Participate in DRM activities in the CoT such as awareness campaigns;

and

Provision of first aid services (especially during events in the community).

The NGO Forum consists of the representation of all the regions of CoT:


Time frame


The NGO sub-

committee to meet

in conjunction with

the meetings of the

DRMAF.

Bi-annual

meetings of

the NGO

sub-

committee

has been

planned and

completed.

The NGO sub-

committee to align

their terms of

reference with the

CRMP and CoT

DRMF and for

social disaster

relief.

An NGO sub-

committee

term of

reference is

developed

and adopted

by the

DRMAF.

The NGO sub-

committee to

develop a social

disaster relief

contingency plan.

A social

disaster relief

contingency

plan is

developed

and aligned

with the

indicative

disaster risk

profile of the

CoT.

The NGO sub-

committee to

develop a

contingency plan

for social disaster

relief in line with the

guidelines in the

A social

disaster relief

contingency

plan has

been

developed in

line with the

CoT DRMF requirement

of the CoT

DRMF and

adopted by

the DRMAF.

The NGO sub-

committee to

develop

standardised and

agreed relief

requirements in

terms of food

provision, shelter

and clothing.

Relief

requirements

has been

develop and

adopted by

the DRMAF.

6.1.5. OTHER SUB-FORA

Due to the dynamic nature of disaster risk management, the DRMAF must from time

to time consider the establishment of other sub-fora should the need arise. These

sub-fora, as is the case of the NGO Forum will be responsible for the development of

their own Term of Reference for the fulfilment of a specific disaster risk management

task assigned to them by the Head of the CoT MDMC.


Time frame


The MDMC to

identify the need for

additional sub-fora

linked to the

DRMAF.

Additional

sub-fora are

established

to address a

specific

disaster risk

management

need.

6.1.6. DISASTER RISK MANAGEMENT COMMITTEES It is further recommended that all metropolitan and district municipalities establish

interdepartmental disaster risk management committees for their areas and that all

district municipalities establish disaster risk management committees in district

management areas. In addition, local municipalities should establish their own

disaster risk management committees and ensure the establishment of disaster risk

management committees or forums in all municipal wards. Ward structures have

been identified and tasked with responsibility for disaster risk management.

6.1.7. PARTICIPATION OF VOLUNTEERS IN DISASTER RISK MANAGEMENT Volunteers are citizens over the age of 18, who donate their time to assist the

Disaster Management Centre in a variety of areas. These generous citizens are

trained and enhance the Centre's ability to build safer and disaster resilient

communities.

In order to maintain an inclusive approach to the participation of volunteers in

disaster risk management, volunteers are classified into three categories.

These categories are:

Units of volunteers

General volunteers

Spontaneous volunteers.

6.1.8. MUNICIPAL DISASTER MANAGEMENT CENTRE (MDMC)

Referral section in the DMA 43 & 43

Referral section in the NDMF 1.2.5.1

Referral section in the GPDMF 1.2.3


DRMF:

4.2.1

4.2.2

The CoT Disaster Management Centre is the primary functional unit for disaster risk

management in the municipal area. It (DMC) provides direction for the

implementation of disaster risk management policies and legislation and integration

and coordination of municipal disaster risk management activities and priorities in

order to ensure that national and provincial objectives are achieved. Furthermore,

the DMC provides support to the NDMC and the GPDMC.


Time frame


Establish and

maintain

institutional

arrangements

that will enable

the

implementation of

the DMA;

The MDMC has

ensured the

establishment of

institutional

arrangements (as per

above sections 5.2,

5.3 and 5.5).

Communicate the

indicate disaster

risk profile of the

CoT to all

planning

departments in

the CoT in order

to inform

developmental

planning.

The indicate risk

profile of the CoT has

been communicated

to all stakeholders.

Provide disaster

risk management

input to the IDP

process.

HOC is member of

IDP planning

committee and

provides disaster risk


Time frame


management input to

development

planning.

Monitor the

integration of

disaster risk

reduction

initiatives into

development

plans.

The MDMC monitors

the integration of

disaster risk reduction

initiatives into

development plans on

an ongoing basis and

provides planning

departments with

advice and input.

Establish

communication

links.

The MDMC has

established

communication links

with all relevant

disaster risk

management focal

points in the CoT.

Facilitate the

development of

response and

recovery plans.

Contingency plans for

prioritised risks have

been developed by all

divisions and


Time frame


municipal entities

under the guidance of

the MDMC and in line

with the CoT DRMF.

Maintain public

awareness

mechanisms.

The MDMC

implements regular

public awareness

strategies in line with

its indicative disaster

risk profile.

Facilitate and

promote disaster

risk management

education,

training and

research in the

municipality

The MDMC has

established

mechanisms to

facilitate and promote

disaster risk

management

education, training

and research

Implement and

maintain dynamic

disaster risk

management

monitoring,

The MDMC has

developed

programmes for

monitoring, evaluating

and improve disaster


Time frame


evaluation and

improvement

programmes;

risk management in

the CoT.

Regular reporting

of disaster risk

management

activities.

The MDMC submits

an annual report on

its disaster risk

management activities

to the NDMC, PDMC

and neighbouring

MDMCs as per the

requirements of the

DMA and NDMF.

Make

recommendations

regarding the

funding of

disaster risk

management in

the municipal

area and the

initiation and

facilitation of

The HOC has made

recommendations

regarding disaster risk

management funding

in the CoT to the

relevant

departments/divisions.


Time frame


efforts to make

such funding

available.

6.1.9. SUB-STRUCTURES OF THE MDMC


DRMF:

4.2.2.5.1

The approved organisational structures of the Disaster Management Division

(referred to as the MDMC in this Plan) consist of the following sections:

• Office of the HoC

• Disaster Risk Management Planning.

• Community Disaster Risk Management.

• Multi-Sectoral coordination.

• Disaster Operations Centre

The Section: Community Disaster Risk Management is the only section within the

MDMC which functions on a regionalised basis.

Each of these sub-sections has full responsibility for community preparedness by

ensuring community participation though the ward structures as well as the

involvement of the public and private sector.


Time frame


The MDMC sub-

structures to

establish

appropriate

community

preparedness and

participation

mechanisms.

Community

disaster risk

reduction

programmes

and

strategies are

developed in

line with the

indicative risk

profile of

specific

wards.

6.2. DIVISIONAL DISASTER RISK MANAGEMENT FOCAL POINTS

The CoT DRMF elaborates on the general and specific disaster risk management

responsibilities of each division in the CoT. In order to comply with the requirements

of a Level 1 Disaster Risk Management Plan each division/department/municipal

entity must complete the following actions:

Action Performance indicator Time

frame

Budget

Responsible entity

KPA 1: Institutional capacity for disaster risk management

Identify one person in the

administration of the

division/department/munic

ipal entity to serve as the


focal point.

A disaster risk

management focal point for

the

division/department/munici

pal entity has been

identified and include


responsibilities on the

scorecard/performance

agreement of the individual

as well as SEDs and GMs.

Assess the


ipal entity institutional

capacity for disaster risk

management.

Each


pal entity has undertaken

an assessment of their own

capacity to engage in


and have submitted a

report to the MDMC (such

a report can contain

training and capacity


frame

Budget

Responsible entity

building requirements or

infrastructure

requirements).

In consultation with the


structures of the MDMC,

take ownership (primary,

secondary or tertiary

responsibility) of an

indicated risk in line with

the core functions of the


ipal entity.

The


pal entity is actively

planning towards the

reduction of the disaster

risk as per the agreement

with the MDMC.

Conduct an annual

resource analysis of

critical resources and

communicate such

analysis with MDMC.

Annual resource analysis is

communicated with MDMC

in written and agreed

format (see Template

MDMC_1 of the CoT

DRMF).

KPA 2: Disaster risk assessment


frame

Budget

Responsible entity

Conduct a scientific risk

assessment of agreed


ipal entity risks.

Each


pal entity with primary

responsibility has

conducted a scientific risk

assessment as per MDMC

guidelines

Determine acceptable

levels of risk and possible

thresholds for action.

Acceptable and

measurable levels of risk

are identified and

thresholds for action have

been allocated.

Identify


ipal entity specific

developmental projects

with directly reduces the

disaster risk in the CoT.

An updated list of

developmental projects

which contributes to

disaster risk reduction has

been submitted to the

MDMC.

KPA 3: Disaster risk reduction

Develop a disaster risk

management plan for the

A

divisional/departmental/mu


frame

Budget

Responsible entity


ipal entity.

nicipal entity disaster risk

management plan is

developed, submitted to the

MDMC and incorporated

into the Level 3 Disaster

Risk Management Plan of

the CoT.

Integrate disaster risk

reduction activities into

the day-to-day planning

and operations of the


ipal entity.

Reduced risk in the CoT is

evidence of the integration

of disaster risk reduction

activities into all

divisions/departments/muni

cipal entities.

Identify and implement

projects annually in line

with departmental

mandate which will

reduce risk in vulnerable

communities

Developmental projects are

identified, planned and

executed with reduced

disaster risk in the CoT.

Develop contingency

plans in line with primary,

Contingency plans for all

prioritised risks in the CoT.


frame

Budget

Responsible entity

secondary or tertiary

responsibility of the


ipal entity and

unacceptable thresholds.

Submit an annual report

on the risk reduction

activities of the


ipal entity to the MDMC

for inclusion in the annual

municipal disaster risk

reduction report to be

submitted to the NDMC

as per the DMA

Annual reports of all


cipal entities are timely

submitted to the MDMC for

inclusion in the CoT annual

report on Disaster Risk

Reduction.

KPA 4: Response And Recovery

Compile standard

operating procedures

(SOPs) and field

operations guides (FOGs)

in line with the

Divisional/departmental/mu

nicipal entity SOPs and

FOGs has been developed.


frame

Budget

Responsible entity

requirements of the


ipal entity specific

contingency plan and the

guidelines of the CoT

DRMF.

Adhere to the standard for

incident management of

the CoT and ensure that

all response personnel

are trained in the standard

(See Annexure 2 of the

CoT DRMF).

The standard for incident

management in the CoT is

implemented.

Ensure that rehabilitation

and reconstruction plans

relating to the primary

activities of the specific


ipal entity are developed

in line with disaster risk

management plans.

Rehabilitation and

reconstruction plans are

develop in line with


pal entity disaster risk

management plans.


frame

Budget

Responsible entity

Ensure that rehabilitation

and reconstruction plans

are based on

developmental challenges

and are development

oriented.

Rehabilitation and

reconstruction plans are

based on developmental

challenges.

Enabler 1: Information management and communication

Communicate disaster

risk management data

and information to all

relevant

divisions/departments/mu

nicipal entities.

Divisions/departments/muni

cipal entities are

communicating disaster

risk management data and

information on an on-going

basis with written evidence.

Draft standard warning

messages to be

disseminated in the media

for specific risks

pertaining to the core

function of the


ipal entity.

Standard warning

messages for specific

primary, secondary or

tertiary responsibility risks

is drafted.


frame

Budget

Responsible entity

Diligently record all

incidents, hazardous

impacts and disasters in

order to establish a

historical record for

forward planning.

Historical records of

hazardous impacts and

incidents pertaining to


pal entity responsibility are

maintained.

Enabler 2: Education, training, public awareness and research

Conduct a disaster risk

management training

needs analysis for the


ipal entity

A disaster risk

management training

needs analysis is compiled

and forwarded to the

MDMC.

Identify specific target

groups for awareness

campaigns and

coordinate such

campaigns with the

MDMC (e.g. early warning

communication).

Target groups are

identified.

Encourage research in


Research relating to



frame

Budget

Responsible entity

related to the

department’s main

responsibility

pal entity specific disaster

risk focus is commissioned

and/or undertaken.

Enabler 3: Funding arrangements

Budget adequately for

departmental disaster risk

management activities.

Disaster risk management

is budgeted for through the

normal budgeting process

of the CoT.

Allocate a percentage of

the annual budget to

implement developmental

projects focussing on


(capital as well as

operational).

A percentage of


pal entity budget is

allocated for developmental

projects focussing

specifically on reducing

disaster risk.

Co-finance disaster risk

reduction projects with

other

divisions/departments/mu

nicipal entities in line with

Disaster risk reduction

projects are co-funded by

CoT


cipal entities.


frame

Budget

Responsible entity

the IDP of the CoT.

Promote insurance and

reinsurance of public

assets.

CoT public assets are

insured and reinsured

where necessary.

6.2.1 ROLES AND RESPONSIBILITIES OF THE DEPARTMENTS/SERVICES

In order for this plan to be practical and executable, the internal departments have to

carry out the following roles and responsibilities in accordance with the CoT DMF.

i. Office of the Mayor and City Manager



Appoint the Head of the MDMC. A head of the MDMC has been appointed.

Ensuring all departmental involvement

in disaster risk management matters by

identifying senior officials to serve on

the disaster risk management structures

Senior officials to serve on the disaster

risk management structures of the CoT

have been identified.


of the CoT.

Assign specific disaster risk

management responsibilities to each

CoT department and ensure the

inclusion of measurable disaster risk

management criteria in the scorecard of

each focal point.

Specific DRM responsibilities have been

assigned to each CoT department and

measurable DRM criteria have been

included in the scorecard of each focal

point.

Enforce the implementation of any

national, provincial and CoT guidelines

pertaining to disaster risk reduction.

The implementation of national, provincial

and CoT guidelines pertaining to disaster

risk reduction are enforced.


Ensure the effective integration of the

disaster risk management plan within

the municipal IDP.

The disaster risk management plan has

been integrated in the municipal IDP.

Implement sustainable livelihoods

strategies as an integral part of the IDP

process.

Sustainable livelihoods strategies are

implemented in the IDP process.

Encourage gender sensitivity in risk

reduction and development planning.

Risk reduction and development planning

processes are gender sensitive.

Enforce an IDP focus on poverty

reduction strategies.

The IDP focuses on poverty reduction

strategies.

Ensure land reform takes place and that Land reform takes place and the most


access to resources by the most

vulnerable communities is enhanced.

vulnerable communities’ access to

resources improves.

KPA 4: Response and recovery

Ensure emergency funds and stocks

(through MAAs with product providers).

Emergency funds and stocks are

available.

ii. CORPORATE AND SHARED SERVICES DEPARTMENT



Ensure that procedures are in place to

appoint temporary staff on short notice if

necessary to execute disaster risk

responsibilities.

Procedures to appoint temporary staff on

short notice are in place.

Ensure that the Conditions of Service

make provision for the utilisation of CoT

staff to assist with the mitigation of a

disaster.

Conditions of service includes a clause to

the effect that staff may be used to assist

with disaster mitigation.


Coordinate operations in respect of Formal agreements exist regarding the


matters related to business continuity

and human resource management in

order to ensure limited duplication with

disaster risk management.

division of labour regarding DRM.


Ensure adequate continuity planning

and structures are in place for

information management.

Adequate continuity planning and

structures are in place for information

management.

Develop, implement and update the IT

Disaster Recovery plan for CoT

information systems and data.

An IT Disaster Recovery plan for CoT

information systems and data has been

implemented and procedures are in place

for updating.

iii. Economic Development Department



Integrate the indicative disaster risk

profile of the CoT with all economic

development programmes and projects

in order to ensure no or minimal

The indicative disaster risk profile of the

CoT has been integrated with all

economic development programmes and

projects.


disruption of natural and anthropogenic

hazards on the economic development of

the CoT;

Identify areas of vulnerability related to

different economic activities.

Areas of vulnerability related to the most

prevalent economic activities have been

identified.


Ensure that economic growth contributes

to vulnerability reduction and disaster risk

avoidance within the CoT.

Economic growth and development has a

specific focus on vulnerability reduction.


Making arrangements for providing

transport for affected families.

An emergency transportation contingency

plan is developed.

Plan for mass transport during

emergencies and disasters.

Contingency plans for mass transport

during emergencies are in place.

iv. FINANCE DEPARTMENT




Establish a disaster management task

team for finances under the guidance of

the Chief Financial Officer.

A disaster management task team for

finances under the guidance of the chief

financial officer has been established.


Enforce disaster risk management

measures as pre-requisites for project

funding.

Project funding is only allocated when

DRM measures are in place.


Implement disaster risk management

spending guidelines and mechanisms

for resource mobilisation.

Resource mobilisation takes place in

accordance with DRM spending guidelines

and measures.


Ensure adequate disaster risk

management funding in line with the

requirements of the Disaster

Management Act 57 of 2002 and the

NDRMF (see Table 71 and 7.2 of the

NDRMF) and the Municipal Finance

Management Act for:

Disaster risk management on-going

Disaster risk management is adequately

funded for:

Disaster risk management on-going

activities;

Disaster risk reduction;

Mitigation and preparedness measures;

Contingency reserve;


activities;

Disaster risk reduction;

Mitigation and preparedness measures;

Contingency reserve;

Disaster response, recovery and

rehabilitation; and

Education, training, capacity building

programmes and research.

Disaster response, recovery and

rehabilitation; and

Education, training, capacity building

programmes and research.

v. EMERGENCY SERVICES DEPARTMENT



House and equip the MDMC as per

legislation and national policy

requirements.

The MDMC is established and equipped as

per national legislation and policy.


The Fire and Rescue Division must

attend to all fire fighting and rescue

Contingency plans and operating

procedures for fire fighting is developed.


functions (rescue of people and

animals).

The Emergency Medical and

Ambulance Division must execute

patient care and transport patients to

hospitals and clinics. They must have a

plan in place for handling mass

casualties.

Contingency plan for the handling mass

casualties is developed.

Operational Support must coordinate

emergency communication and have

procedures in place to deal with same.

They must provide adequate

communication links with relevant

stakeholders.

Operational Support has procedures in

place for emergency communication.

vi. CITY PLANNING, DEVELOPMENT AND REGIONAL SERVICES DEPARTMENT



Adequately plan for emergency housing. Contingency plans for emergency housing


are in place.

Apply various forms of environmental

protection and management (e.g.

reforestation, river-basin planning,

agricultural practices, soil conservation

and natural hazard control techniques)

and enforce the adherence to the above

through the Management Meeting.

The absence of environmental

degradation.


Integrate risk management within all

project management activities.

All management activities include an

element of disaster risk management.

Include DRM principles in spatial

development frameworks.

Spatial and development frameworks

include DRM principles.


Compile a strategy and plan to provide

for alternative housing, temporary

shelter in case of emergencies.

A strategy and contingency plan to

provide for alternative housing, temporary

shelter in case of emergencies is in place.

Compile a contingency plan to provide

for alternative housing during localised

events and disasters. This should

include criteria of the circumstances

when alternative housing will be

A contingency plan to provide for

alternative housing during localised events

and disasters, including criteria of the

circumstances when alternative housing

will be provided should be in place.


provided.

Compile a response strategy to deal

with informal settlements at various

levels. (Including illegal squatting).

A response strategy to deal with informal

settlements is in place.

Relocation procedures as prevention

measure and during emergencies.

Relocation procedures are in place.

Prepare a plan for mass burials

(cemeteries, social development).

A contingency plan for mass burials is in

place.

Plan for and provide transport to move

affected people to temporary shelter in

cooperation with Local Economic

Development.

A contingency plan to move affected

people to temporary shelter in cooperation

with local economic development is in

place.


Communicate development related

information to the MDMC especially

information on high risk developments.

MDMC is always aware of high risk

developments.

vii. CORPORATE & SHARED SERVICES DEPARTMENT




Ensure a legal framework for response

and recovery in terms of CoT liability to

identified risks.

A legal framework for response and

recovery in terms of CoT liability to

identified risks is in place.

viii. COMMUNITY SAFETY DEPARTMENT



Provide security in response to disasters

and emergencies, if needed.

Contingency plans for the provision of

security in response to disasters and

emergencies are in place.

ix. ROADS AND TRANSPORT DEPARTMENT



Conduct regular flood assessment. Up to date flood assessment is available.

Ensure a continuous of water supply to Maintenance records of water supply


the CoT. infrastructure are available.

Monitor and maintain flow meters in

rivers in the CoT

Records of flow meter inspections are

available.


Create adequate supportive

infrastructure to enhance sustainable

livelihoods.

Adequate supportive infrastructure to

enhance sustainable livelihoods is

created.

Develop and maintain storm water

infrastructure.

Maintenance records of storm water

infrastructure are available.

Maintain maximum water discharge

capacity in storm water infrastructure.

Procedures/guidelines are in place for

maintenance of storm water infrastructure

and are enforced.

Compile a flood management plan. A flood management plan is available.

Strive to maintain a healthy balance

between flood prevention and

environmental conservation.

Proper guidelines to ensure a balance

between flood prevention and

environmental conservation are in

available and enforced.


Provide water tankers in emergency and

disaster situations.

Plans/procedures are In place for the

deployment of water tankers in emergency

and disaster situations.


Provide for the pumping of water from

flooded houses and areas.

The necessary equipment for pumping

water form flooded houses is available

and working.

Repair/reconstruct road damage caused

by hazards.

Roads are always in good order.

Enabler 2: Education, training, public awareness and research

Initiatives to support awareness of

flooding and being water wise in

general.

Water awareness projects are launched.


Funding all activities related to flood

management.

Sufficient funding for all flood

management has been sourced and is

available when needed.

x. PUBLIC WORKS AND INFRASTRUCTURE DEVELOPMENT DEPARTMENT



Identify areas of risk in terms of A list of areas at risk in terms of electricity


electricity provision. provision exists and is available.

Identify critical facilities for priority

electricity provision (e.g. hospitals,

national key points, CoT systems).

A list of critical facilities for priority

electricity provision exists and is available.


Develop and implement an effective

infrastructure maintenance programme.

An infrastructure maintenance programme

is implemented.

Conduct contingency planning for

prolonged electricity failures.

Contingency plans for prolonged electricity

failure exist and are available.


Provide generators in the case of

electricity crises during emergencies

and disasters.

Working generators are available.


Maintain a database of critical facilities

in terms of electricity.

A database exists of critical facilities in

terms of electricity.

Establish communication links with

Disaster Operations Centre.

Relevant lists of telephone/cell phone

numbers and e-mail addresses are

available.

xi. SOCIAL DEVELOPMENT DEPARTMENT



Identify socially vulnerable

communities.

Records of socially vulnerable communities

and the reason(s) they are deemed

vulnerable (vulnerability assessments) are

available.


Ensure that communities at risk have

access to basic services in line with

the developmental focus and strategic

objectives of the CoT in order to

reduce vulnerabilities.

Universal provision of basic series such as,

water, sanitation and electivity.


Compile an in-departmental response

and relief plan for all eventualities with

specific emphasis on the human

element.

An in-departmental response and recovery

plan for all eventualities is available.

Develop and implement procedures for

provision of emergency food, blankets

and shelter (in coordination with the

Housing, City Planning and

Procedures for the provision of emergency

food are on record.


Environmental Management

Department).


Maintain an indigent register which will

contribute to vulnerability identification.

An indigent register is available.

Provide information on “poverty

pockets”.

A list of “poverty pockets” and the relevant

details of each pocket (e.g. location and

extent and nature of poverty) is on record.

Provide information on child headed

families.

Information relating to the amount of and

locations of child headed households are

available.

6.3. INTEGRATED DEVELOPMENT PLAN

In view of the inextricable relationship between disaster and development, it is

imperative that the heads of MDMCs and those individuals assigned responsibility

for disaster risk management in local municipalities serve on the relevant IDP

structures. The Head of Disaster Management Centres has full participation in

integrated development planning processes and structures for the City.

As disaster risk reduction efforts are medium- to long-term multispectral efforts

focused on vulnerability reduction, they must be incorporated into on-going IDP

projects, processes, programmes and structures. Effective and adaptive disaster risk

reduction interventions in the municipal sphere are best planned and implemented

as development initiatives through IDP mechanisms and phases.

6.4. MUTUAL ASSISTANCE AGREEMENTS In accordance with the Act, national departments, provinces and municipalities must

establish their level of capacity to deal with disaster risk reduction, response and

recovery. Where necessary, and to strengthen this capacity, they must enter into

mutual assistance agreements with their neighbours, the private sector, other organs

of state and communities. At provincial and municipal level, co-operation and co-

ordination efforts must be supported by cross-boundary mutual assistance

agreements (that is, between provinces, between provinces and municipalities and

between municipalities), and by creating partnerships within each sphere with the

private sector and NGOs through memoranda of understanding. Mutual assistance

agreements and memoranda of understanding are legal documents. Their

parameters must be clearly defined and they should include details of financial

arrangements, reimbursements and liability. They must also be in compliance with

the national standard guideline on mutual assistance agreements developed by the

NDMC.

6.5. CROSS-BORDER RELATIONSHIPS

It is of paramount importance that the CoT maintains cross-border relationships with

other municipalities. The GPDMC is coordinating cross-border task team which

comprises of all municipalities in the Gauteng Province and the team meets regularly

to monitor the cross-border related disaster management issues. The team also

gives feedback to the CoT DMAF.

7. THE DISASTER RISK MANAGEMENT PLANNING FRAMEWORK The diagram below (figure 1) provides an overview of the structure for disaster risk

management planning for the CoT for compiling its disaster risk management plans and

must be viewed in conjunction with the disaster risk management framework for the CoT. It

is applicable to disaster risk management planning by the divisions and other municipal

entities of the CoT.

Two main components to the planning framework for disaster risk management is the

integration of disaster risk assessment and developmental practices. This is evident in the

emphasis this planning framework places on disaster risk assessment and the Integrated

Development Plan. In essence the planning framework aims to introduce the need for

mainstreaming disaster risk management actions into development planning. The rationale

behind this is the fact that in the South African context, disaster risk is rooted in community

vulnerability and poverty. Thus, a logical and most appropriate manner in which to address

the above is through development planning.

Furthermore, the planning framework is divided into two sections: risk reduction planning

and contingency planning. In both instances the CoT MDMC as well as all municipal

departments/divisions/entities has certain planning responsibilities. These planning

responsibilities are directly related to the inherent function of the municipal

departments/divisions/entities in question. Section 1.7 of the CoT DRMF provides

information in the specific and general responsibilities of the different municipal

departments/divisions/entities.

7.1 RISK REDUCTION PLANNING

In terms of disaster risk reduction planning, each municipal departments/divisions/entities as

well as the CoT MDMC must compile a disaster risk management plan.

Risk reduction planning consists of two components. Firstly, the disaster risk management

plans of the MDMC as well as the different municipal departments/divisions/entities must

engage in vulnerability reduction planning. Such planning involves addressing the root

causes on social, economic, physical, ecological and political vulnerabilities. Each of these

can already be addressed by the existing development projects in the CoT. Secondly,

municipal departments/divisions/entities must make provision for disaster risk management

planning in their respective developmental projects. Special emphasis should be placed on

high risk developments as well as in communities in which multiple vulnerabilities has been

identified.

7.2 CONTINGENCY PLANNING

The Disaster Management Act mandates each municipal entity and organ of state to prepare

a disaster risk management plan which must include contingency strategies and emergency

procedures to be implemented in the event of a disaster. It mandates all municipalities within

an applicable municipal disaster risk management framework to develop disaster risk

management plans which must include contingency plans and emergency procedures to be

applied in the event of a disaster.

Contingency planning is referred to as ‘a forward planning process in a state of uncertainty’

because although the findings of the disaster risk assessment for the CoT provides a risk

profile from which the hazards which pose the greatest threat (priority risks) have been

identified, there is no certainty of:

• when it will strike?

• where it will strike?

• what the magnitude and extent will be?

• what impact it will have?

Despite the fact that planning must focus on those hazards that pose the greatest threat,

planning must also take into account other threats which are less likely to occur, or those

which may not occur at all but cannot be ignored.

Contingency planning is therefore a matter of creating scenarios and making assumptions,

asking the question ‘What if?’, and then planning to deal with the possible consequences.

Disaster risk-based planning means that although plans must address the specific hazards

which have been identified as a priority for a given area they must also be flexible enough to

cater for all eventualities (hazards). All of these factors will have a direct influence on how

contingency plans are structured.

Contingency planning therefore related to the mitigation, prevention and response plans for

all prioritised hazards in the CoT. These contingency plans is risk specific and aims to

ensure that in the event of a hazard exploiting vulnerability, a response and mitigation

mechanism is in place. As is the case in disaster risk reduction planning, the MDMC and all

other municipal departments/divisions/entities must be involved in the development of

contingency plans (see section 11 below).

The second aspect to contingency planning is the development of generic contingency

plans. These generic plans aims to ensure contingency measures for the activities normally

associated with any event. It therefore means that these generic plans can be applied in any

given instance which will limit the amount of planning which will be repeated in the hazard

specific contingency plans.

Cognisance should be taken of the fact that a number of contingency plans already exist in

the CoT. These plans must be incorporated into the planning process of the MDMC and

aligned with this DRMP.

In the interim, the DMC has developed a template for both generic and hazard specific

contingency plan, which must be filled in by relevant CoT departments in order to complete

the Disaster Management Planning process.

DISASTER RISK ASSESSMENT

COT Municipal Divisions/

Departments/

Entities:

Disaster Risk Management Plans

Municipal Divisions/

Departments/

Entities:

Involvement in contingency planning

Risk

Reduction

Vulnerability

Reduction

Hazard Specific

Contingency

Economic

Social

Floods

Physical

Ecological

Political

Fires

HazMat

Sinkholes

Floods

Specific Risk

Reduction

Projects

CoT

Contingency

Planning

Generic Contingency

Plans

High Risk

Developments

Local areas/

Communities

with multiple

vulnerabilities

Incident management

Early Warnings

Assessment

Search and Rescue

Public Health

Severe weather etc.

Figure 1: Disaster Risk Management Planning Framework for the CoT

8. DISASTER RISK ASSESSMENT FOR THE COT

Phase one of the projects included a literature and document study in order to ensure that all

known and relevant information in the CoT is taken into consideration. Part of this phase was

meetings with the staff of the MDMC in order to conduct a macro disaster risk assessment

based on the experience and perceptions of the MDMC staff.

Phase two of the project included data and information sourcing from various internal as well

as external sources. The sources obtained enabled the consultant to ground truth the macro

risk assessment of phase one and also to add to the existing knowledge base of disaster risk

in the CoT. Through the geo-referencing of historical incidents an accurate profile of

hazardous events could be recorded and probability analysis could be conducted. This

allowed ensure a better and verified macro-risk assessment. By making use of the macro-

risk assessment, a prioritised list of disaster risks in the CoT could be identified which in turn

provided the impetus to phase three of the project.

The third phase included the identification of disaster risk management planning priorities for

the CoT. In this phase the current developmental (IDP) projects of the CoT was assessed in

terms of their contribution to disaster risk reduction in the CoT and in doing so their disaster

risk reduction factor in relation to the indicative disaster risk profile of the CoT could be

determined. This allowed for the adaptation of the macro-risk profile of the CoT to take into

consideration the developmental initiatives by various CoT divisions and departments to

reduce disaster risk.

In addition to the above, the fourth phase of the project identified special disaster risk

reduction projects which different departments and divisions should consider which will lead

to the further reduction of disaster risk.

The fifth phase of the project related to the requirements for the development of generic and

specific contingency plans for the prioritised risks of the CoT. Institutional arrangement for

the development of contingency plans was specified. The contingency plans must be

developed in accordance with the specified template of the CoT DRMF

The final phase in the project established (as an integrated component to the whole DRMP)

action steps towards the development of a Level 2 Disaster Risk Management Plan.

8.1 Macro Hazard Assessment

The following table contains a macro hazard assessment for the CoT in order to prioritise

disaster risks. A three-point scale was used for the standardisation of the assessment.

Scale used:

• High

• Medium

• Low

HAZARD GEOGRAPHICAL LOCATION

PROBABILITY FREQUENCY INTENSITY PREDICTABILITY/ FOREWARNING

EXPOSE IMPACT KNOCK-ON EFFECT

1. Fires (Shack) In formal

Settlements e.g.

1) Itereleng

2) Kanana

3) Lusaka

4) Plastic view

5) Mooiplaas

6) Olievenhoutbosch

7) Brazzaville

8) Mamelodi

9) Atteridgeville

High High High Low Properties and

communities

High Veld fires

2. Fires (veld) 1) Fort Klapperkop

2) Gerhardville

3) Wahlamnsdal

Area

4) Rietvlei

5) Moot

High but

seasonal

High High Medium Environment,

properties

Medium

3. Floods 1) Greater

hamanskraal

area

2) Olievenhoutbo

sch

3) Lotus gardens

4) Atteridgeville

5) Mamelodi

6) Apies rivier

High but

seasonal

High High Low Properties,

livelihoods and

infrastructure.

High




7) Hennops rivier

4. Sever weather

conditions

All areas in

Tshwane

High but

seasonal

Medium Medium Low Properties,

livelihoods and

infrastructure.

Medium Damaged

infrastructure

5. Hazardous

materials

Along the major

routes, e.g. N1,

R27, N12, N4 along

the industrial such

as Roslyn, Watloo,

PTA West.

Medium Medium High Low Environment.

Communities

High Pollution

6. Sinkholes Greater Centurion

area. All areas in

centurion.

High High Medium Low Communities

and

infrastructure

Medium

7. Special events

(including 2010)

All facilities

handling events

such as sports,

large gathering.

E.g. Loftus,

1) Super stadium,

2) Odi stadium,

3) union

buildings,

4) HM Pietjie.

5) Waterkloof

airport

6) Tshwabac

Medium Low Medium Low People

attending the

gatherings.

High




showgrounds

8. Mission

Critical Systems

Failure (MCFS)

All facilities.

Rietvleidam

NECSA

PTA West power

station

Medium Low Medium Low All

infrastructure

and facilities.

High

9.Transportation

accidents

All train stations, on

major routes and

along the airport.

N1, N12, N4

Low Low Low Low Commuters

and

infrastructure.

High

10. Building

collapse

All areas Medium Low Low Low Buildings and

people

highH

8.2 Macro Vulnerability Assessment

The macro vulnerability assessment considered the elements which are vulnerable due to the possible impact of a hazard on the indicated

geographical areas. The table below contains a breakdown of the social, physical, economic, environmental and political/institutional

vulnerability factors which contributes to the increase in disaster risks.

COMMUNITY:

COT Vulnerable elements exacerbating the possible impact of the hazard

HAZARD SOCIAL PHYSICAL ECONOMIC ENVIRONMENTAL POLITICAL/

INSTITUTIONAL 1. Fire (Shack) • Lack of knowledge on

fire prevention

• Incorrect risk

perception

• Unemployment

• Child headed

households

• Domestic disputes

• Social behaviour e.g.

substance abuse

• Lack of natural

conservation

• Need for self

preservation

• Building methods

• Type of structures,

use of combustible

materials

• Incorrect use of fuels

for heating

• No access to fire

protection/ equipment

• Lack of electricity

services

• Shacks build too close

to each other

• Displacement

• Unsafe/old

• Poverty

• Lack of awareness

and education

• Conflict between

various “classes” in

communities

• Lack of safety nets

• Settlement in fire

prone area.

• Weather conditions,

seasonal factors e.g.

windy season, dry

season etc.

• Presence of high

trees next to

settlement especially

alien vegetation.

• Faction fighting

• Inadequate

enforcement of

building codes

• Inadequate

development

• Land redistribution

• Political expectations

• Inadequate planning

• Exclusivity

• Unchecked

urbanisation and

urban sprawl

• Unchecked land

COMMUNITY: COT

Vulnerable elements exacerbating the possible impact of the hazard

HAZARD SOCIAL PHYSICAL ECONOMIC ENVIRONMENTAL POLITICAL/ INSTITUTIONAL

equipment

• Unsafe practices e.g.

placement of cooking

utensils

• Storage of bulk fuels

used generally for

heating close to

shacks

• Incorrect farming

techniques

invasion

2.Fires veld • Lack of knowledge on

fire prevention

• Arson

• Environmental

ignorance

• Social behaviour e.g.

smoking, uncheck

open fires.

• Incorrect agricultural

practices

• Lack of access to

early warning

messages through

IT/media

• Absence of fire breaks

• Illegal dumping of

combustible material

• Unavailability of fire

protection equipment

• Grazing fields

destroyed

• Fire breaks getting out

of control

• Uncontrolled might

lead to burning of

feedlots, loss of

farming equipment,

tools etc

• Overgrowth of alien

vegetation

• Maintenance of road

reserves

• Negative impact on

ozone layers

• Air and land pollution

• Wild animals attracted

to suburbs in search

of food / running from

fires

• Pest control problems

• Damage to sensitive

environmental species

• Lack of information

• Influencing people to

settle in specific areas

for political gain

• Insufficient resources

to combat veld fires.

• Unchecked land

invasion

COMMUNITY: COT



3. Floods • Settling in flood prone

areas

• Settling too close to

riverbanks

• Settling in pathway of

storm water

• Illegal dumping in

storm water drains

• Dumping in rivers and

spruits blocking water

runways

• Acts to deforest

immediate

environment

• Improper household

drainage systems

• Absence of storm

water drainage

systems

• Effective urban storm

water drainage

systems might cause

floods in receiving end

areas and suburbs

• Soil type and structure

• Unplanned

developments

• Plane areas

• Lack of education


• Availability of budget

for maintenance of

storm water

management


early warning

messages through

IT/media

• Improper

management and or

development in

wetlands

• Deforestation

• Seasonal factors

• Poor development

planning

• Poor storm water

planning

• Poor maintenance of

dam wall structures

• Maintenance of storm

water systems

4. Severe weather

conditions • Lack of awareness/

training

• Non-compliance to

building codes

• Settling in illegal

areas

• Types of housing

structures and

materials used

• Dangerous social

• Soil type (drainage)

• Geographic location

• Storage of hazardous

material

• Insufficient lightning

protection

• Poor building

structures

• Abuse of natural


early warning

messages through

IT/media

• Poor farming

practices

• Urbanisation

• Lack of development

and implementation of

early warning systems


resources

• Poor farming

practices

• Research / advanced

technological

interference with

nature processes

• Poor urban planning

• Lack of integrated

development planning

COMMUNITY: COT



behaviour

• Ignorance of early

warning signals

water resources

• Poor maintenance of

farming and other

equipment, storm

water manholes

5. HAZMAT • Social behaviour e.g.

smoking in prohibited

areas, drunk driving

etc.


legal requirements

• Continuous training of

HAZMAT workers

• Storage facilities

compliant with

regulations, location

etc

• Transporting vehicles

compliant with

legislation

• Clean-up costs

• Maintenance of roads

mainly used for

HAZMAT transport

• Protective clothing

provision and

maintenance

• Spillages impact

• Pollution

• Early warnings in

place for extreme

weather conditions

• Environmental impact

assessment

• Building regulations

• Enforcement of

legislation and

regulations

• Keeping of HAZMAT

registers

• Monitoring and

planning of transport

routes

6. Sinkholes • Settling on specific

soil types prone to

sinkholes

• Lack of information

and education

• Unsafe practices e.g.

lack of repair of water

leakages

• Uncontrolled watering

of gardens

• Building structures

• Maintenance of water

pipes and taps

• Control over mining

activities


• Poverty

• Delays in informal

settlement relocations

• Geological survey

funding

• Insurance coverage

for dolomite areas

• Soil type

• Lack of drainage

• Geological surveys

prior to development


assessments

• Building codes

enforcement

• Aggressive

awareness programs

• Strict development

and settlement control

mechanisms

COMMUNITY: COT



• Ignorance

• Misinterpretation of

Councils responsibility

relating to repair of

private property

damage

7. Special events • Risky social behaviour

• Large gatherings

• Uninvited attendees

• Cultural clashes

• Lack of crowd control

• Substance abuse

• Unusual emotional

states

• Type of event

• Crowd expectations

• VIP presence

• Specific location

• Venue capacity

• Permanent /

temporary structures

present

• Adequate

facilities/amenities

• Security at adjacent

premises

• Lack of knowledge of

access and

evacuation routes

• Public entry fees

• Emergency resources

and costs for stand-by

• Extreme weather

conditions

• Environmental

analysis

• Sufficient security

• Event planning

• Safety and security

regulations

compliance

• No disaster

prevention plans

8. Mission critical

systems failure • Sabotage

• Irresponsible care for

equipment

• Improper usage

• Crime e.g. theft

• Illegal connections

overloading systems

• Planning and

maintenance of

systems

• Non-payment for

services rendered

• Maintenance of

systems


control measure over

• Pollution

• Extreme weather

conditions

• Accurate accounting

systems

• Alternative sourcing

options available

• Disaster risk

management plans

COMMUNITY: COT



• Bypass of meters/

equipment

• Illegal connections


resources

• Rage

• Despondent council

employees

resources e.g.

watering outside

restriction times

• Safety and

environmental

regulations

enforcement

• Compliance to

national and provincial

regulations

9. Transportation

incidents • Social behaviour e.g

tiredness, substance

abuse

• Road rage

• Crime e.g. Hi-jackings

, vandalism

• Adherence to road

regulations

• Overloading of

vehicles

• Rubbernecking at

incidents

• Lack of clear road

names/maps/signs

• Poor road conditions

• Poor vehicle condition

• Lack of appropriate

lighting after hours

• Overloaded vehicles

• Vehicles not

roadworthy

• Lack of SOS

communication

assistance

• Insufficient trained

and effective Metropol

and EMS personnel in

• Road maintenance

• Emergency service

provision and costing

• Policing costs

• Safety nets

• 3rd party insurance

• Availability of

alternative routes

• Extreme weather

conditions

• License renewals

• Enforcement of traffic

regulations

• Integrated

infrastructure planning

COMMUNITY: COT



incident management

10. Building collapse

• Exceeding max

people capacity

• Vandalism

• Crowd and spectator

control

• Terrorism

• Building structure

• Building maintenance

• Location

• Reconstruction

costs

• Insurance costs

• Search and

rescue costs

• Law suits


assessment prior to

development

• Geological analysis

prior to dev (soil

analysis)

• Early warning

systems in place

• Lack of compliance to

building and safety

regulations

• Lack of emergency

planning

9. THE DISASTER RISK PROFILE OF THE COT

The City of Tshwane, as one of the urban growth centres in South Africa, faces

increased levels of urban risk. These disaster risks include the following as listed

in table 3.The DMC considered and incorporated all inputs and comments obtained

from role-players through the processes mentioned above. The risks had now to be

ranked in order of importance. To assist with this process, the following risk equation

was applied:

Hazard X vulnerability

Risk = _________________

Manageability X capacity.

Priority Risk Area/region most vulnerable

1 Dolomite resulting in sinkholes South (region 4)

2 Community impact of mission critical

systems failure

All regions

3 Informal settlement and veld fires All regions

4 Pollution All regions

5 Flooding incidents All regions

6 Hazardous material incidents

7 Civil strife and xenophobia Attrigeville & Mamelodi

8 Major transportation accidents All major routes

9 Epidemics All regions

10 Special events incidents All regions

Other disaster risks occurring within the jurisdiction of the City of Tshwane

include but not limited to the following:-

• Terrorism/Weapons of Mass Destruction

• Extreme Heat

• Tornado

• Blight Infestation

• Drought

• Earthquakes

• Extreme Cold

• Hail

• Hostage Incident

• Windstorm

• Aviation incidents

10. FORMAL CONSULTATIVE MECHANISM FOR DISASTER RISK REDUCTION PROJECTS

The appropriate mechanisms for consultation for disaster risk reduction projects are

indicated in the CoT DRMF. Though these forums and in partnership with the activities

of the IDP structures of the CoT, disaster risk reduction projects must be identified and

planned for in line with the disaster risk priorities in section 8 above. The rationale is that

disaster risk can largely be addressed through developmental initiatives and projects.

The IDP process is therefore ideally suited for such actions.

In order to ensure the continuous incorporation of disaster risk related information into

the IDP planning process and projects it is important that the MDMC have access to the

IDP planning structures and become an active member of its meetings. Although

cognisance is taken of the fact that disaster risk management will not be incorporated

into all developmental projects in the short-term, it remains imperative that current IDP

projects are aligned with the disaster risk profile of the CoT.

10.1 IDP projects contributing to vulnerability and hazard reduction

An assessment of the current IDP projects indicated that a number of developmental

projects are already contributing to disaster risk reduction in the CoT to some extent.

Although these projects form part of the normal line function responsibilities, it already

indicate that a vast number of projects are inherently taking issues of disaster risk

reduction into account. It remains impetrative to conduct a detailed analysis of these as

well as all future planned projects and align these with the disaster risk priorities as

alluded to earlier in this plan.

The following IDP projects are linked to the disaster risk priorities. Note that some

projects are repeated as they address more than one priority risk.

11. DISASTER RISK MANAGEMENT PLANNING PRIORITIES FOR THE COT

Although the CoT disaster risk profile has identified a wide range of risks posing a

potential threat to its area, it is not practical nor is it financially achievable to address all

the risks simultaneously. Effective and focused disaster risk management planning by all

organs of state and municipal entities can only be achieved through the identification of

priority disaster risks and by the identification of the areas, communities and households

most at risk to disaster in council’s area. It is therefore necessary to adopt a carefully

considered process which will enable this prioritisation.

Part of the prioritisation process will also be to adopt a three - phased approach to

disaster risk management planning. This does not however imply that once the third

phase is completed that the planning process is over. It must be clearly understood that

disaster risk management planning is not a stop/start activity or project but a continuous

process which of necessity must produce dynamic, real time plans which remain current

in a continuously changing environment.

The process of prioritisation for disaster risk planning is critically informed by the disaster

risk assessment findings for the CoT.

The CoT must focus on the development of plans and the implementation of explicit

programmes, projects and practices which give priority to building resilience and

reducing the impact of a wide range of different disaster risks in areas, communities and

households known to be to risk

The CoT’s priorities must therefore focus on preventing or limiting the impact of the

following disaster risks:

Wide scale events that due to their magnitude, likely to affect the CoT as a whole. These

include widespread floods and other severe weather events such as severe storms, and

tonadoes; veld fires; and hazardous materials (storage, transportation and usage).

Recurrent high and medium impact events that may require CoT’s intervention or the

mobilization of resources and infrastructure such as sinkholes, special events, floods

and other severe weather events, large informal settlement fires, veld and urban fringe

fires.

Low frequency high and medium magnitude disaster risks with potential for severe loss

and which require specialist support possibly not available in the CoT, such as nuclear

accidents, major transport accidents, Mission Critical Systems Failure and building

collapse.

Disaster risks that affect neighboring authorities which may have consequences for the

CoT.

In the above regard it is the responsibility of each division and any other entity included

in the organizational structure of the CoT to identify and prioritize those disaster risks

relevant to their functional area and prepare their departmental disaster risk

management plan accordingly.

Action Performance Time frame Budget Responsible

indicator entity Disaster risks must be

prioritised by different

municipal entities and

departments in line with

the key functions.

All CoT

departments

and entities

have prioritised

the CoT

disaster risks in

line with their

specific

function and

include this in

their planning.

12. INCENTIVE SYSTEM FOR THE PROMOTION OF DISASTER RISK MANAGEMENT IN THE COT Referral section in the DMA: 44(1)(e)

44(2)

Referral section in the CoT DRMF: 1.7.2.5

6.4.2

9.4.1

In involvement of all role-players in disaster risk management in the CoT remains an

important element which must be achieved in the next 5 years. Although this is not a

requirement of a Level 1 Disaster Risk Management Plan, the process to involve all

stakeholders and to obtain their buy-in is long term. For this reason the CoT MDMC

must already develop an incentive system for the promotion of disaster risk management

in the CoT.

Such an incentive system can take on various formats from tax rebates, to local/ward

competitions, schools projects and community imbizos. The development of an incentive

system for the CoT must from part of the deliberations of the CoT DRMAF.

No. Action Performance

indicator Time frame Budget Responsible

entity

12.1 Develop a phased

incentive system for the

promotion of disaster risk

management in the CoT

among different role-

players.

A phased

incentive

system has

been

developed

through the

assistance of

the DRMAF.

13. DISASTER RISK MANAGEMENT INFORMATION SYSTEM

The Disaster Management Information System (DMIS) for the CoT is in the process of

development. It is been developed in a web base environment and is database driven to

make it accessible from anywhere and to make it more user friendly. The system relies

on data and different databases for disaster risk assessment. Spatial and attribute data

is joined to provide a complete picture of disaster risk or what to expect whenever a

disaster occurs.

The DMIS is enabled to do hazard identification, vulnerability assessments, risk

assessments, disaster risk reduction as well as planning for an incident. In order to

conduct the above a vast amount of GIS information is required which ranges from

baseline information (such as infrastructure, land use, topography and hydrology) to

stakeholder contact detail for contingency planning.

A functional element of the DMIS is the integration of various checklists which allows the

MDMC to track tasks and responsibilities of all role-players. These checklists guide the

used through a planning process which ensures that all information requirements are

supplied by the various municipal departments and entities. Furthermore, all Standard

Operation Procedures, legislation, policies and bylaw documentation are incorporated in

the system for ease of use and reference.

The DMIS has a SMS and e-mail facility to communicate between all role players. All

actions on the system are captured in an electronic “Occurrence Book” for record

keeping.

The GIS system is an integrated and essential part of the system in order to display

generic datasets. The overlay functionality of the GIS allows various databases and

datasets to be overlaid in order to provide a valuable and powerful decision-making tool

for the MDMC and all other municipal stakeholders. Vulnerability and hazard maps is a

key output of the system as this can provide politicians with a better understanding of the

dynamics of a specific ward.

Reporting to the NDMC is also done by exporting data from an incident to a MS Excel

worksheet. Status screens assist in keeping top management up to date will all actions

of all role-players through a web-enabled environment.

It remains imperative for the MDMC to obtain full functionality of the DMIS in order to

fully utilise its components for development planning and disaster risk reduction

purposes.

Action Performance


entity Ensure the completion of

the DMIS.

DMIS is

completed and

operational.

14. EMERGENCY COMMUNICATION SYSTEM

During 2009 the CoT has procured a Tetra radio system for all departments. This system

replaces all other analogue system that was in operation. This system is managed by

Electronic Services and they also provide user support and technical support. All tetra

radios are multi-channel and users can select on which channel they want to work.

Direct communication between two radios is also possible. All functions that are

available on the desktop and mobile versions are also available in the hand held sets. All

line functions are responsible for their own contingency plans for emergency

communication. Where there is no reception this system makes use of the cell phone

network to communicate.

Figure 2 below is a graphical representation of the current information flow between the

different role-players in the case of an emergency, major event or disaster. The flow of

information is directly related to the physical set-up within the DOC. For purposes of

coordination and different levels of decision-making the information flow is divided into

two sections: information for tactical decision-making (DOC) and information for strategic

decision-making (Decision Making Room – Perdehoef).

The DOC is responsible for the coordination of all operation and tactical information from

the various role-players. Such information is relayed to the DMIS and GIS system for

readily available strategic decision-making by the Decision Making Room (situated in the

Perdehoef in the Pieter Delport Centre). It should be noted that the diagram below has

not been adapted to include the new and current realities of the Cot MDMC in relation to

the CoT DRMF, contingency plans, incident management system (see Annexure C) and

Level 1 Disaster Risk Management Plan. The emergency communication system must

be updated and aligned by the MDMC to take into account the aspects as discussed

above.

FFigure 2: Emergeency Communicaation flow in the Disaster Operatiion Centre of thee CoT

Action Performance


entity Align the current emergency

communication flow with the

new requirements of the Cot

DRMF and Disaster Risk

Management Plan

Emergency

communication

flow plan.

15. AREAS FOR FOCUSSED DISASTER RISK ASSESSMENTS

In order to process towards a Level 2 Disaster Risk Management Plan for the CoT, and in line with the findings of the macro disaster risk assessment, it is imperative that the following wards enjoy immediate attention in terms of focussed, community based disaster risk assessments:

• (wards still to be confirmed) The above assessments must be conducted in accordance with acceptable community based disaster risk assessment methodologies, taking into account the specific requirements of the MDMC GIS.


Time frame Budget Responsible entity

Determine and agree on a community based disaster risk assessment methodology for the high-risk wards in the CoT.

A robust community based disaster risk assessment is developed.

Conduct detailed community based disaster risk assessments in

Comparative and robust results of the community based disaster risk assessments.

16. IMPLEMENTATION STRATEGY FOR THE DRM PLAN In order to successfully implement this plan the MDMC is responsible for all action as contained in Annexure A. Through the successful implementation of the actions as set out in Annexure A, the CoT MDMC will have achieved a Level 1 Plan status for the CoT.

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